US National Security Strategy May 2010

8/9/2019 US National Security Strategy May 2010

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May 2010

N A T I O N A L S E C U R I T YS T R A T E G Y


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Table of Contents

I. Overview of National Security Strategy . . . . . . . . . . . . . . . . . . . . . . . . 1

II. Strategic Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

The Strategic EnvironmentThe World as It Is . . . . . . . . . . . . . . . . . . . . 7

The Strategic ApproachThe World We Seek . . . . . . . . . . . . . . . . . . . . 9

Building Our Foundation . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Pursuing Comprehensive Engagement. . . . . . . . . . . . . . . . . . . . . 11

Promoting a Just and Sustainable International Order . . . . . . . . . . . . . . . 12

Strengthening National CapacityA Whole of Government Approach . . . . . . . . . . 14

III. Advancing Our Interests . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Strengthen Security and Resilience at Home. . . . . . . . . . . . . . . . . . . 18

Disrupt, Dismantle, and Defeat Al-Qaida and its Violent Extremist Affiliates in

Afghanistan, Pakistan, and Around the World . . . . . . . . . . . . . . . . . . 19

Use of Force . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Reverse the Spread of Nuclear and Biological Weapons and Secure Nuclear Materials . . 23

Advance Peace, Security, and Opportunity in the Greater Middle East . . . . . . . . . 24

Invest in the Capacity of Strong and Capable Partners . . . . . . . . . . . . . . . 26

Secure Cyberspace. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Prosperity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28

Strengthen Education and Human Capital . . . . . . . . . . . . . . . . . . . 29

Enhance Science, Technology, and Innovation . . . . . . . . . . . . . . . . . . 30

Achieve Balanced and Sustainable Growth . . . . . . . . . . . . . . . . . . . 31

Accelerate Sustainable Development . . . . . . . . . . . . . . . . . . . . . 33

Spend Taxpayers Dollars Wisely. . . . . . . . . . . . . . . . . . . . . . . . 34


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Values. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

Strengthen the Power of Our Example . . . . . . . . . . . . . . . . . . . . . 36

Promote Democracy and Human Rights Abroad . . . . . . . . . . . . . . . . . 37

Promote Dignity by Meeting Basic Needs . . . . . . . . . . . . . . . . . . . . 39

International Order. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Ensure Strong Alliances . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Build Cooperation with Other 21st Century Centers of Influence . . . . . . . . . . . 43

Strengthen Institutions and Mechanisms for Cooperation . . . . . . . . . . . . . 46

Sustain Broad Cooperation on Key Global Challenges . . . . . . . . . . . . . . . 47

IV. Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51


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I. Overview of National Security Strategy

At the dawn of the 21st century, the United States of America faces a broad and complex array of chal-

lenges to our national security. Just as America helped to determine the course of the 20th century,

we must now build the sources of American strength and influence, and shape an international order

capable of overcoming the challenges of the 21st century.

The World as It Is, A Strategy for the World We Seek

To succeed, we must face the world as it is. The two decades since the end of the Cold War have been

marked by both the promise and perils of change. The circle of peaceful democracies has expanded; the

specter of nuclear war has lifted; major powers are at peace; the global economy has grown; commerce

has stitched the fate of nations together; and more individuals can determine their own destiny. Yet these

advances have been accompanied by persistent problems. Wars over ideology have given way to wars

over religious, ethnic, and tribal identity; nuclear dangers have proliferated; inequality and economicinstability have intensified; damage to our environment, food insecurity, and dangers to public health

are increasingly shared; and the same tools that empower individuals to build enable them to destroy.

The dark side of this globalized world came to the forefront for the American people on September

11, 2001. The immediate threat demonstrated by the deadliest attacks ever launched upon American

soil demanded strong and durable approaches to defend our homeland. In the years since, we have

launched a war against al-Qaida and its affiliates, decided to fight a war in Iraq, and confronted a sweep-

ing economic crisis. More broadly, though, we have wrestled with how to advance American interests in a

world that has changeda world in which the international architecture of the 20th century is buckling

under the weight of new threats, the global economy has accelerated the competition facing our people

and businesses, and the universal aspiration for freedom and dignity contends with new obstacles.

Our country possesses the attributes that have supported our leadership for decadessturdy alliances,

an unmatched military, the worlds largest economy, a strong and evolving democracy, and a dynamic

citizenry. Going forward, there should be no doubt: the United States of America will continue to

underwrite global securitythrough our commitments to allies, partners, and institutions; our focus on

defeating al-Qaida and its affiliates in Afghanistan, Pakistan, and around the globe; and our determina-

tion to deter aggression and prevent the proliferation of the worlds most dangerous weapons. As we do,

we must recognize that no one nationno matter how powerfulcan meet global challenges alone.

As we did after World War II, America must prepare for the future, while forging cooperative approaches

among nations that can yield results.

Our national security strategy is, therefore, focused on renewing American leadership so that we can

more effectively advance our interests in the 21st century. We will do so by building upon the sources

of our strength at home, while shaping an international order that can meet the challenges of our

time. This strategy recognizes the fundamental connection between our national security, our national

competitiveness, resilience, and moral example. And it reaffirms Americas commitment to pursue our

interests through an international system in which all nations have certain rights and responsibilities.


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This will allow America to leverage our engagement abroad on behalf of a world in which individuals

enjoy more freedom and opportunity, and nations have incentives to act responsibly, while facing

consequences when they do not.

Renewing American LeadershipBuilding at Home, Shaping AbroadOur approach begins with a commitment to build a stronger foundation for American leadership,

because what takes place within our borders will determine our strength and influence beyond them.

This truth is only heightened in a world of greater interconnectiona world in which our prosperity is

inextricably linked to global prosperity, our security can be directly challenged by developments across

an ocean, and our actions are scrutinized as never before.

At the center of our efforts is a commitment to renew our economy, which serves as the wellspring of

American power. The American people are now emerging from the most devastating recession that we

have faced since the Great Depression. As we continue to act to ensure that our recovery is broad and

sustained, we are also laying the foundation for the long term growth of our economy and competitive-

ness of our citizens. The investments that we have made in recovery are a part of a broader effort that

will contribute to our strength: by providing a quality education for our children; enhancing science and

innovation; transforming our energy economy to power new jobs and industries; lowering the cost of

health care for our people and businesses; and reducing the Federal deficit.

Each of these steps will sustain Americas ability to lead in a world where economic power and individual

opportunity are more diffuse. These efforts are also tied to our commitment to secure a more resilient

nation. Our recovery includes rebuilding an infrastructure that will be more secure and reliable in the

face of terrorist threats and natural disasters. Our focus on education and science can ensure that the

breakthroughs of tomorrow take place in the United States. Our development of new sources of energy

will reduce our dependence on foreign oil. Our commitment to deficit reduction will discipline us tomake hard choices, and to avoid overreach. These steps complement our efforts to integrate homeland

security with national security; including seamless coordination among Federal, state, and local govern-

ments to prevent, protect against, and respond to threats and natural disasters.

Finally, the work to build a stronger foundation for our leadership within our borders recognizes that

the most effective way for the United States of America to promote our values is to live them. Americas

commitment to democracy, human rights, and the rule of law are essential sources of our strength and

influence in the world. They too must be cultivated by our rejection of actions like torture that are not in

line with our values, by our commitment to pursue justice consistent with our Constitution, and by our

steady determination to extend the promise of America to all of our citizens. America has always been

a beacon to the peoples of the world when we ensure that the light of Americas example burns bright.

Building this stronger foundation will support Americas efforts to shape an international system that

can meet the challenges of our time. In the aftermath of World War II, it was the United States that

helped take the lead in constructing a new international architecture to keep the peace and advance

prosperityfrom NATO and the United Nations, to treaties that govern the laws and weapons of war;

from the World Bank and International Monetary Fund, to an expanding web of trade agreements. This


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Advancing Top National Security Priorities

Just as our national security strategy is focused on renewing our leadership for the long term, it is also

facilitating immediate action on top priorities. This Administration has no greater responsibility than

the safety and security of the American people. And there is no greater threat to the American people

than weapons of mass destruction, particularly the danger posed by the pursuit of nuclear weapons byviolent extremists and their proliferation to additional states.

That is why we are pursuing a comprehensive nonproliferation and nuclear security agenda, grounded

in the rights and responsibilities of nations. We are reducing our nuclear arsenal and reliance on nuclear

weapons, while ensuring the reliability and effectiveness of our deterrent. We are strengthening the

Nuclear Non-Proliferation Treaty (NPT) as the foundation of nonproliferation, while working through

the NPT to hold nations like Iran and North Korea accountable for their failure to meet international

obligations. We are leading a global effort to secure all vulnerable nuclear materials from terrorists.

And we are pursuing new strategies to protect against biological attacks and challenges to the cyber

networks that we depend upon.

As we secure the worlds most dangerous weapons, we are fighting a war against a far-reaching network

of hatred and violence. We will disrupt, dismantle, and defeat al-Qaida and its affiliates through a com-

prehensive strategy that denies them safe haven, strengthens front-line partners, secures our homeland,

pursues justice through durable legal approaches, and counters a bankrupt agenda of extremism and

murder with an agenda of hope and opportunity. The frontline of this fight is Afghanistan and Pakistan,

where we are applying relentless pressure on al-Qaida, breaking the Talibans momentum, and strength-

ening the security and capacity of our partners. In this effort, our troops are again demonstrating their

extraordinary service, making great sacrifices in a time of danger, and they have our full support.

In Iraq, we are transitioning to full Iraqi sovereignty and responsibilitya process that includes the

removal of our troops, the strengthening of our civilian capacity, and a long-term partnership to theIraqi Government and people. We will be unwavering in our pursuit of a comprehensive peace between

Israel and its neighbors, including a two-state solution that ensures Israels security, while fulfilling the

Palestinian peoples legitimate aspirations for a viable state of their own. And our broader engagement

with Muslim communities around the world will spur progress on critical political and security matters,

while advancing partnerships on a broad range of issues based upon mutual interests and mutual

respect.

As we rebuild the economic strength upon which our leadership depends, we are working to advance

the balanced and sustainable growth upon which global prosperity and stability depends. This includes

steps at home and abroad to prevent another crisis. We have shifted focus to the G-20 as the premier

forum for international economic cooperation, and are working to rebalance global demand so thatAmerica saves more and exports more, while emerging economies generate more demand. And we will

pursue bilateral and multilateral trade agreements that advance our shared prosperity, while accelerat-

ing investments in development that can narrow inequality, expand markets, and support individual

opportunity and state capacity abroad.


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These efforts to advance security and prosperity are enhanced by our support for certain values that are

universal. Nations that respect human rights and democratic values are more successful and stronger

partners, and individuals who enjoy such respect are more able to achieve their full potential. The United

States rejects the false choice between the narrow pursuit of our interests and an endless campaign

to impose our values. Instead, we see it as fundamental to our own interests to support a just peace

around the worldone in which individuals, and not just nations, are granted the fundamental rights

that they deserve.

In keeping with the focus on the foundation of our strength and influence, we are promoting universal

values abroad by living them at home, and will not seek to impose these values through force. Instead,

we are working to strengthen international norms on behalf of human rights, while welcoming all

peaceful democratic movements. We are supporting the development of institutions within fragile

democracies, integrating human rights as a part of our dialogue with repressive governments, and sup-

porting the spread of technologies that facilitate the freedom to access information. And we recognize

economic opportunity as a human right, and are promoting the dignity of all men and women through

our support for global health, food security, and cooperatives responses to humanitarian crises.Finally, our efforts to shape an international order that promotes a just peace must facilitate cooperation

capable of addressing the problems of our time. This international order will support our interests, but

it is also an end that we seek in its own right. New challenges hold out the prospect of opportunity, but

only if the international community breaks down the old habits of suspicion to build upon common

interests. A global effort to combat climate change must draw upon national actions to reduce emis-

sions and a commitment to mitigate their impact. Efforts to prevent conflicts and keep the peace in their

aftermath can stop insecurity from spreading. Global cooperation to prevent the spread of pandemic

disease can promote public health.

Implementing this agenda will not be easy. To succeed, we must balance and integrate all elements

of American power and update our national security capacity for the 21st century. We must maintain

our militarys conventional superiority, while enhancing its capacity to defeat asymmetric threats. Our

diplomacy and development capabilities must be modernized, and our civilian expeditionary capac-

ity strengthened, to support the full breadth of our priorities. Our intelligence and homeland security

efforts must be integrated with our national security policies, and those of our allies and partners. And

our ability to synchronize our actions while communicating effectively with foreign publics must be

enhanced to sustain global support.

However, Americas greatest asset remains our people. In an era that will be shaped by the ability to seize

the opportunities of a world that has grown more interconnected, it is the American people who will

make the differencethe troops and civilians serving within our government; businesses, foundations,

and educational institutions that operate around the globe; and citizens who possess the dynamism,

drive, and diversity to thrive in a world that has grown smaller. Because for all of its dangers, globalization

is in part a product of American leadership and the ingenuity of the American people. We are uniquely

suited to seize its promise.


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Our story is not without imperfections. Yet at each juncture that history has called upon us to rise to

the occasion, we have advanced our own security, while contributing to the cause of human progress.

To continue to do so, our national security strategy must be informed by our people, enhanced by the

contributions of the Congress, and strengthened by the unity of the American people. If we draw on

that spirit anew, we can build a world of greater peace, prosperity, and human dignity.


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II. Strategic Approach

More than at any point in human historythe interests of nations and peoples are

shared. e religious convictions that we hold in our hearts can forge new bonds amongpeople, or tear us apart. e technology we harness can light the path to peace, or forever

darken it. e energy we use can sustain our planet, or destroy it. What happens to the

hope of a single childanywherecan enrich our world, or impoverish it.

President Barack Obama, United Nations General Assembly, September 22, 2009

The United States must renew its leadership in the world by building and cultivating the sources of our

strength and influence. Our national security depends upon Americas ability to leverage our unique

national attributes, just as global security depends upon strong and responsible American leadership.

That includes our military might, economic competitiveness, moral leadership, global engagement,

and efforts to shape an international system that serves the mutual interests of nations and peoples.

For the world has changed at an extraordinary pace, and the United States must adapt to advance our

interests and sustain our leadership.

American interests are enduring. They are:

The security of the United States, its citizens, and U.S. allies and partners;

A strong, innovative, and growing U.S. economy in an open international economic system that

promotes opportunity and prosperity;

Respect for universal values at home and around the world; and

An international order advanced by U.S. leadership that promotes peace, security, and oppor-

tunity through stronger cooperation to meet global challenges.

Currently, the United States is focused on implementing a responsible transition as we end the war in

Iraq, succeeding in Afghanistan, and defeating al-Qaida and its terrorist affiliates, while moving our

economy from catastrophic recession to lasting recovery. As we confront these crises, our national

strategy must take a longer view. We must build a stronger foundation for American leadership and

work to better shape the outcomes that are most fundamental to our people in the 21st century.

The Strategic EnvironmentThe World as It Is

In the two decades since the end of the Cold War, the free flow of information, people, goods and services

has accelerated at an unprecedented rate. This interconnection has empowered individuals for good

and ill, and challenged state based international institutions that were largely designed in the wake of

World War II by policymakers who had different challenges in mind. Nonstate actors can have a dramatic

influence on the world around them. Economic growth has alleviated poverty and led to new centers of

influence. More nations are asserting themselves regionally and globally. The lives of our citizenstheir

safety and prosperityare more bound than ever to events beyond our borders.


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Within this environment, the attacks of September 11, 2001, were a transformative event for the United

States, demonstrating just how much trends far beyond our shores could directly endanger the personal

safety of the American people. The attacks put into sharp focus Americas position as the sole global

superpower, the dangers of violent extremism, and the simmering conflicts that followed the peaceful

conclusion of the Cold War. And they drew a swift and forceful response from the United States and

our allies and partners in Afghanistan. This response was followed by our decision to go to war in Iraq,

and the ensuing years have seen Americas forces, resources, and national security strategy focused on

these conflicts.

The United States is now fighting two wars with many thousands of our men and women deployed in

harms way, and hundreds of billions of dollars dedicated to funding these conflicts. In Iraq, we are sup-

porting a transition of responsibility to the sovereign Iraqi Government. We are supporting the security

and prosperity of our partners in Afghanistan and Pakistan as part of a broader campaign to disrupt,

dismantle, and defeat al-Qaida and its violent extremist affiliates.

Yet these warsand our global efforts to successfully counter violent extremismare only one ele-

ment of our strategic environment and cannot define Americas engagement with the world. Terrorismis one of many threats that are more consequential in a global age. The gravest danger to the American

people and global security continues to come from weapons of mass destruction, particularly nuclear

weapons. The space and cyberspace capabilities that power our daily lives and military operations are

vulnerable to disruption and attack. Dependence upon fossil fuels constrains our options and pollutes

our environment. Climate change and pandemic disease threaten the security of regions and the health

and safety of the American people. Failing states breed conflict and endanger regional and global

security. Global criminal networks foment insecurity abroad and bring people and goods across our

own borders that threaten our people.

The global economy is being reshaped by innovation, emerging economies, transition to low-carbon

energy, and recovery from a catastrophic recession. The convergence of wealth and living standards

among developed and emerging economies holds out the promise of more balanced global growth, but

dramatic inequality persists within and among nations. Profound cultural and demographic tensions,

rising demand for resources, and rapid urbanization could reshape single countries and entire regions.

As the world grows more interconnected, more individuals are gaining awareness of their universal

rights and have the capacity to pursue them. Democracies that respect the rights of their people remain

successful states and Americas most steadfast allies. Yet the advance of democracy and human rights

has stalled in many parts of the world.

More actors exert power and influence. Europe is now more united, free, and at peace than ever before.

The European Union has deepened its integration. Russia has reemerged in the international arena as a

strong voice. China and Indiathe worlds two most populous nationsare becoming more engaged

globally. From Latin America to Africa to the Pacific, new and emerging powers hold out opportunities

for partnership, even as a handful of states endanger regional and global security by flouting interna-

tional norms. International institutions play a critical role in facilitating cooperation, but at times cannot

effectively address new threats or seize new opportunities. Meanwhile, individuals, corporations, and

civil society play an increasingly important role in shaping events around the world.


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The United States retains the strengths that have enabled our leadership for many decades. Our society

is exceptional in its openness, vast diversity, resilience, and engaged citizenry. Our private sector and

civil society exhibit enormous ingenuity and innovation, and our workers are capable and dedicated.

We have the worlds largest economy and most powerful military, strong alliances and a vibrant cultural

appeal, and a history of leadership in economic and social development. We continue to be a destination

that is sought out by immigrants from around the world, who enrich our society. We have a transparent,

accountable democracy and a dynamic and productive populace with deep connections to peoples

around the world. And we continue to embrace a set of values that have enabled liberty and opportunity

at home and abroad.

Now, the very fluidity within the international system that breeds new challenges must be approached

as an opportunity to forge new international cooperation. We must rebalance our long-term priorities so

that we successfully move beyond todays wars, and focus our attention and resources on a broader set

of countries and challenges. We must seize on the opportunities afforded by the worlds interconnection,

while responding effectively and comprehensively to its dangers. And we must take advantage of the

unparalleled connections that Americas Government, private sector, and citizens have around the globe.

The Strategic ApproachThe World We Seek

In the past, the United States has thrived when both our nation and our national security policy have

adapted to shape change instead of being shaped by it. For instance, as the industrial revolution took

hold, America transformed our economy and our role in the world. When the world was confronted by

fascism, America prepared itself to win a war and to shape the peace that followed. When the United

States encountered an ideological, economic, and military threat from communism, we shaped our

practices and institutions at homeand policies abroadto meet this challenge. Now, we must once

again position the United States to champion mutual interests among nations and peoples.

Building Our Foundation

Our national security begins at home. What takes place within our borders has always been the source

of our strength, and this is even truer in an age of interconnection.

First and foremost, we must renew the foundation of Americas strength. In the long run, the welfare

of the American people will determine Americas strength in the world, particularly at a time when our

own economy is inextricably linked to the global economy. Our prosperity serves as a wellspring for

our power. It pays for our military, underwrites our diplomacy and development efforts, and serves as

a leading source of our influence in the world. Moreover, our trade and investment supports millions

of American jobs, forges links among countries, spurs global development, and contributes to a stableand peaceful political and economic environment.

Yet even as we have maintained our military advantage, our competitiveness has been set back in recent

years. We are recovering from underinvestment in the areas that are central to Americas strength. We

have not adequately advanced priorities like education, energy, science and technology, and health

careall of which are essential to U.S. competitiveness, long-term prosperity, and strength. Years of

rising fiscal and trade deficits will also necessitate hard choices in the years ahead.


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That is why we are rebuilding our economy so that it will serve as an engine of opportunity for the

American people, and a source of American influence abroad. The United States must ensure that we

have the worlds best-educated workforce, a private sector that fosters innovation, and citizens and busi-

nesses that can access affordable health care to compete in a globalized economy. We must transform

the way that we use energydiversifying supplies, investing in innovation, and deploying clean energy

technologies. By doing so, we will enhance energy security, create jobs, and fight climate change.

Rebuilding our economy must include putting ourselves on a fiscally sustainable path. As such, imple-

menting our national security strategy will require a disciplined approach to setting priorities and mak-

ing tradeoffs among competing programs and activities. Taken together, these efforts will position our

nation for success in the global marketplace, while also supporting our national security capacitythe

strength of our military, intelligence, diplomacy and development, and the security and resilience of

our homeland.

We are now moving beyond traditional distinctions between homeland and national security. National

security draws on the strength and resilience of our citizens, communities, and economy. This includes a

determination to prevent terrorist attacks against the American people by fully coordinating the actionsthat we take abroad with the actions and precautions that we take at home. It must also include a com-

mitment to building a more secure and resilient nation, while maintaining open flows of goods and

people. We will continue to develop the capacity to address the threats and hazards that confront us,

while redeveloping our infrastructure to secure our people and work cooperatively with other nations.

Americas example is also a critical component of our foundation. The human rights which America has

stood for since our founding have enabled our leadership, provided a source of inspiration for peoples

around the world, and drawn a clear contrast between the United States and our democratic allies, and

those nations and individuals that deny or suppress human rights. Our efforts to live our own values,

and uphold the principles of democracy in our own society, underpin our support for the aspirations of

the oppressed abroad, who know they can turn to America for leadership based on justice and hope.

Our moral leadership is grounded principally in the power of our examplenot through an effort to

impose our system on other peoples. Yet over the years, some methods employed in pursuit of our

security have compromised our fidelity to the values that we promote, and our leadership on their

behalf. This undercuts our ability to support democratic movements abroad, challenge nations that

violate international human rights norms, and apply our broader leadership for good in the world.

That is why we will lead on behalf of our values by living them. Our struggle to stay true to our values

and Constitution has always been a lodestar, both to the American people and to those who share our

aspiration for human dignity.

Our values have allowed us to draw the best and brightest to our shores, to inspire those who share ourcause abroad, and to give us the credibility to stand up to tyranny. America must demonstrate through

words and deeds the resilience of our values and Constitution. For if we compromise our values in pur-

suit of security, we will undermine both; if we fortify them, we will sustain a key source of our strength

and leadership in the worldone that sets us apart from our enemies and our potential competitors.


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Pursuing Comprehensive Engagement

Our foundation will support our efforts to engage nations, institutions, and peoples around the world

on the basis of mutual interests and mutual respect.

Engagement is the active participation of the United States in relationships beyond our borders. It is,

quite simply, the opposite of a self-imposed isolation that denies us the ability to shape outcomes.

Indeed, America has never succeeded through isolationism. As the nation that helped to build our

international system after World War II and to bring about the globalization that came with the end of

the Cold War, we must reengage the world on a comprehensive and sustained basis.

Engagement begins with our closest friends and alliesfrom Europe to Asia; from North America to

the Middle East. These nations share a common history of struggle on behalf of security, prosperity, and

democracy. They share common values and a common commitment to international norms that recog-

nize both the rights and responsibilities of all sovereign nations. Americas national security depends on

these vibrant alliances, and we must engage them as active partners in addressing global and regional

security priorities and harnessing new opportunities to advance common interests. For instance, wepursue close and regular collaboration with our close allies the United Kingdom, France, and Germany

on issues of mutual and global concern.

We will continue to deepen our cooperation with other 21st century centers of influenceincluding

China, India, and Russiaon the basis of mutual interests and mutual respect. We will also pursue

diplomacy and development that supports the emergence of new and successful partners, from the

Americas to Africa; from the Middle East to Southeast Asia. Our ability to advance constructive coopera-

tion is essential to the security and prosperity of specific regions, and to facilitating global cooperation on

issues ranging from violent extremism and nuclear proliferation, to climate change, and global economic

instabilityissues that challenge all nations, but that no one nation alone can meet.

To adversarial governments, we offer a clear choice: abide by international norms, and achieve the

political and economic benefits that come with greater integration with the international community;

or refuse to accept this pathway, and bear the consequences of that decision, including greater isolation.

Through engagement, we can create opportunities to resolve differences, strengthen the international

communitys support for our actions, learn about the intentions and nature of closed regimes, and plainly

demonstrate to the publics within those nations that their governments are to blame for their isolation.

Successful engagement will depend upon the effective use and integration of different elements of

American power. Our diplomacy and development capabilities must help prevent conflict, spur eco-

nomic growth, strengthen weak and failing states, lift people out of poverty, combat climate change

and epidemic disease, and strengthen institutions of democratic governance. Our military will continue

strengthening its capacity to partner with foreign counterparts, train and assist security forces, and

pursue military-to-military ties with a broad range of governments. We will continue to foster economic

and financial transactions to advance our shared prosperity. And our intelligence and law enforcement

agencies must cooperate effectively with foreign governments to anticipate events, respond to crises,

and provide safety and security.


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Finally, we will pursue engagement among peoplesnot just governmentsaround the world. The

United States Government will make a sustained effort to engage civil society and citizens and facilitate

increased connections among the American people and peoples around the worldthrough efforts

ranging from public service and educational exchanges, to increased commerce and private sector

partnerships. In many instances, these modes of engagement have a powerful and enduring impact

beyond our borders, and are a cost-effective way of projecting a positive vision of American leadership.

Time and again, we have seen that the best ambassadors for American values and interests are the

American peopleour businesses, nongovernmental organizations, scientists, athletes, artists, military

service members, and students.

Facilitating increased international engagement outside of government will help prepare our country

to thrive in a global economy, while building the goodwill and relationships that are invaluable to sus-

taining American leadership. It also helps leverage strengths that are unique to Americaour diversity

and diaspora populations, our openness and creativity, and the values that our people embody in their

own lives.

Promoting a Just and Sustainable International Order

Our engagement will underpin a just and sustainable international orderjust, because it advances

mutual interests, protects the rights of all, and holds accountable those who refuse to meet their

responsibilities; sustainable because it is based on broadly shared norms and fosters collective action

to address common challenges.

This engagement will pursue an international order that recognizes the rights and responsibilities of all

nations. As we did after World War II, we must pursue a rules-based international system that can advance

our own interests by serving mutual interests. International institutions must be more effective and

representative of the diffusion of influence in the 21st century. Nations must have incentives to behave

responsibly, or be isolated when they do not. The test of this international order must be the cooperation

it facilitates and the results it generatesthe ability of nations to come together to confront common

challenges like violent extremism, nuclear proliferation, climate change, and a changing global economy.

That is precisely the reason we should strengthen enforcement of international law and our commit-

ment to engage and modernize international institutions and frameworks. Those nations that refuse

to meet their responsibilities will forsake the opportunities that come with international cooperation.

Credible and effective alternatives to military actionfrom sanctions to isolationmust be strong

enough to change behavior, just as we must reinforce our alliances and our military capabilities. And if

nations challenge or undermine an international order that is based upon rights and responsibilities,

they must find themselves isolated.

We succeeded in the post-World War II era by pursuing our interests within multilateral forums like the

United Nationsnot outside of them. We recognized that institutions that aggregated the national inter-

ests of many nations would never be perfect; but we also saw that they were an indispensable vehicle

for pooling international resources and enforcing international norms. Indeed, the basis for international


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cooperation since World War II has been an architecture of international institutions, organizations,

regimes, and standards that establishes certain rights and responsibilities for all sovereign nations.

In recent years Americas frustration with international institutions has led us at times to engage the

United Nations (U.N.) system on an ad hoc basis. But in a world of transnational challenges, the United

States will need to invest in strengthening the international system, working from inside interna-tional institutions and frameworks to face their imperfections head on and to mobilize transnational

cooperation.

We must be clear-eyed about the factors that have impeded effectiveness in the past. In order for collec-

tive action to be mobilized, the polarization that persists across region, race, and religion will need to be

replaced by a galvanizing sense of shared interest. Swift and effective international action often turns on

the political will of coalitions of countries that comprise regional or international institutions. New and

emerging powers who seek greater voice and representation will need to accept greater responsibility

for meeting global challenges. When nations breach agreed international norms, the countries who

espouse those norms must be convinced to band together to enforce them.

We will expand our support to modernizing institutions and arrangements such as the evolution of the

G-8 to the G-20 to reflect the realities of todays international environment. Working with the institutions

and the countries that comprise them, we will enhance international capacity to prevent conflict, spur

economic growth, improve security, combat climate change, and address the challenges posed by weak

and failing states. And we will challenge and assist international institutions and frameworks to reform

when they fail to live up to their promise. Strengthening the legitimacy and authority of international

law and institutions, especially the U.N., will require a constant struggle to improve performance.

Furthermore, our international order must recognize the increasing influence of individuals in todays

world. There must be opportunities for civil society to thrive within nations and to forge connections

among them. And there must be opportunities for individuals and the private sector to play a major rolein addressing common challengeswhether supporting a nuclear fuel bank, promoting global health,

fostering entrepreneurship, or exposing violations of universal rights. In the 21st century, the ability of

individuals and nongovernment actors to play a positive role in shaping the international environment

represents a distinct opportunity for the United States.

Within this context, we know that an international order where every nation upholds its rights and

responsibilities will remain elusive. Force will sometimes be necessary to confront threats. Technology

will continue to bring with it new dangers. Poverty and disease will not be completely abolished.

Oppression will always be with us. But if we recognize these challenges, embrace Americas responsibil-

ity to confront them with its partners, and forge new cooperative approaches to get others to join us

in overcoming them, then the international order of a globalized age can better advance our interestsand the common interests of nations and peoples everywhere.


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Strengthening National CapacityA Whole of Government Approach

To succeed, we must update, balance, and integrate all of the tools of American power and work with our

allies and partners to do the same. Our military must maintain its conventional superiority and, as long as

nuclear weapons exist, our nuclear deterrent capability, while continuing to enhance its capacity to defeat

asymmetric threats, preserve access to the global commons, and strengthen partners. We must invest

in diplomacy and development capabilities and institutions in a way that complements and reinforces

our global partners. Our intelligence capabilities must continuously evolve to identify and characterize

conventional and asymmetric threats and provide timely insight. And we must integrate our approach to

homeland security with our broader national security approach.

We are improving the integration of skills and capabilities within our military and civilian institutions, so

they complement each other and operate seamlessly. We are also improving coordinated planning and

policymaking and must build our capacity in key areas where we fall short. This requires close coopera-

tion with Congress and a deliberate and inclusive interagency process, so that we achieve integration of

our efforts to implement and monitor operations, policies, and strategies. To initiate this effort, the White

House merged the staffs of the National Security Council and Homeland Security Council.

However, work remains to foster coordination across departments and agencies. Key steps include more

effectively ensuring alignment of resources with our national security strategy, adapting the education and

training of national security professionals to equip them to meet modern challenges, reviewing authorities

and mechanisms to implement and coordinate assistance programs, and other policies and programs that

strengthen coordination.

Defense:We are strengthening our military to ensure that it can prevail in todays wars; to prevent and

deter threats against the United States, its interests, and our allies and partners; and prepare to defend

the United States in a wide range of contingencies against state and nonstate actors. We will continue to

rebalance our military capabilities to excel at counterterrorism, counterinsurgency, stability operations,

and meeting increasingly sophisticated security threats, while ensuring our force is ready to addressthe full range of military operations. This includes preparing for increasingly sophisticated adversaries,

deterring and defeating aggression in anti-access environments, and defending the United States and

supporting civil authorities at home. The most valuable component of our national defense is the men

and women who make up Americas all-volunteer force. They have shown tremendous resilience, adapt-

ability, and capacity for innovation, and we will provide our service members with the resources that

they need to succeed and rededicate ourselves to providing support and care for wounded warriors,

veterans, and military families. We must set the force on a path to sustainable deployment cycles and

preserve and enhance the long-term viability of our force through successful recruitment, retention,

and recognition of those who serve.

Diplomacy:Diplomacy is as fundamental to our national security as our defense capability. Our diplo-

mats are the first line of engagement, listening to our partners, learning from them, building respect for

one another, and seeking common ground. Diplomats, development experts, and others in the United

States Government must be able to work side by side to support a common agenda. New skills are

needed to foster effective interaction to convene, connect, and mobilize not only other governments

and international organizations, but also nonstate actors such as corporations, foundations, nongovern-

mental organizations, universities, think tanks, and faith-based organizations, all of whom increasingly

have a distinct role to play on both diplomatic and development issues. To accomplish these goals our


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diplomatic personnel and missions must be expanded at home and abroad to support the increasingly

transnational nature of 21st century security challenges. And we must provide the appropriate authori-

ties and mechanisms to implement and coordinate assistance programs and grow the civilian expedi-

tionary capacity required to assist governments on a diverse array of issues.

Economic:Our economic institutions are crucial components of our national capacity and our economic

instruments are the bedrock of sustainable national growth, prosperity and influence. The Office of

Management and Budget, Departments of the Treasury, State, Commerce, Energy, and Agriculture,

United States Trade Representative, Federal Reserve Board, and other institutions help manage our

currency, trade, foreign investment, deficit, inflation, productivity, and national competitiveness.

Remaining a vibrant 21st century economic power also requires close cooperation between and

among developed nations and emerging markets because of the interdependent nature of the global

economy. Americalike other nationsis dependent upon overseas markets to sell its exports and

maintain access to scarce commodities and resources. Thus, finding overlapping mutual economic

interests with other nations and maintaining those economic relationships are key elements of our

national security strategy.

Development:Development is a strategic, economic, and moral imperative. We are focusing on assist-

ing developing countries and their people to manage security threats, reap the benefits of global

economic expansion, and set in place accountable and democratic institutions that serve basic human

needs. Through an aggressive and affirmative development agenda and commensurate resources,

we can strengthen the regional partners we need to help us stop conflicts and counter global criminal

networks; build a stable, inclusive global economy with new sources of prosperity; advance democracy

and human rights; and ultimately position ourselves to better address key global challenges by growing

the ranks of prosperous, capable, and democratic states that can be our partners in the decades ahead.

To do this, we are expanding our civilian development capability; engaging with international financial

institutions that leverage our resources and advance our objectives; pursuing a development budget

that more deliberately reflects our policies and our strategy, not sector earmarks; and ensuring that ourpolicy instruments are aligned in support of development objectives.

Homeland Security: Homeland security traces its roots to traditional and historic functions of govern-

ment and society, such as civil defense, emergency response, law enforcement, customs, border patrol,

and immigration. In the aftermath of 9/11 and the foundation of the Department of Homeland Security,

these functions have taken on new organization and urgency. Homeland security, therefore, strives to

adapt these traditional functions to confront new threats and evolving hazards. It is not simply about

government action alone, but rather about the collective strength of the entire country. Our approach

relies on our shared efforts to identify and interdict threats; deny hostile actors the ability to operate

within our borders; maintain effective control of our physical borders; safeguard lawful trade and travel

into and out of the United States; disrupt and dismantle transnational terrorist, and criminal organiza-

tions; and ensure our national resilience in the face of the threat and hazards. Taken together, these

efforts must support a homeland that is safe and secure from terrorism and other hazards and in which

American interests, aspirations, and way of life can thrive.

Intelligence:Our countrys safety and prosperity depend on the quality of the intelligence we collect

and the analysis we produce, our ability to evaluate and share this information in a timely manner,

and our ability to counter intelligence threats. This is as true for the strategic intelligence that informs

executive decisions as it is for intelligence support to homeland security, state, local, and tribal govern-


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ments, our troops, and critical national missions. We are working to better integrate the Intelligence

Community, while also enhancing the capabilities of our Intelligence Community members. We are

strengthening our partnerships with foreign intelligence services and sustaining strong ties with our

close allies. And we continue to invest in the men and women of the Intelligence Community.

Strategic Communications:Across all of our efforts, effective strategic communications are essential to

sustaining global legitimacy and supporting our policy aims. Aligning our actions with our words is a

shared responsibility that must be fostered by a culture of communication throughout government.

We must also be more effective in our deliberate communication and engagement and do a better job

understanding the attitudes, opinions, grievances, and concerns of peoplesnot just elitesaround

the world. Doing so allows us to convey credible, consistent messages and to develop effective plans,

while better understanding how our actions will be perceived. We must also use a broad range of meth-

ods for communicating with foreign publics, including new media.

The American People and the Private Sector:The ideas, values, energy, creativity, and resilience of our

citizens are Americas greatest resource. We will support the development of prepared, vigilant, and

engaged communities and underscore that our citizens are the heart of a resilient country. And wemust tap the ingenuity outside government through strategic partnerships with the private sector,

nongovernmental organizations, foundations, and community-based organizations. Such partnerships

are critical to U.S. success at home and abroad, and we will support them through enhanced opportuni-

ties for engagement, coordination, transparency, and information sharing.


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III. Advancing Our Interests

To achieve the world we seek, the United States must apply our strategic approach in pursuit of four

enduring national interests:

Security:The security of the United States, its citizens, and U.S. allies and partners.

Prosperity:A strong, innovative, and growing U.S. economy in an open international economic

system that promotes opportunity and prosperity.

Values:Respect for universal values at home and around the world.

International Order:An international order advanced by U.S. leadership that promotes peace,

security, and opportunity through stronger cooperation to meet global challenges.

Each of these interests is inextricably linked to the others: no single interest can be pursued in isolation,

but at the same time, positive action in one area will help advance all four. The initiatives described

below do not encompass all of Americas national security concerns. However, they represent areas ofparticular priority and areas where progress is critical to securing our country and renewing American

leadership in the years to come.

Security

We will not apologize for our way of life, nor will we waver in its defense. And for those

who seek to advance their aims by inducing terror and slaughtering innocents, we say to

you now that our spirit is stronger and cannot be brokenyou cannot outlast us, and we

will defeat you.

President Barack Obama, Inaugural Address, January 20, 2009

The threats to our people, our homeland, and our interests have shifted dramatically in the last 20 years.

Competition among states endures, but instead of a single nuclear adversary, the United States is now

threatened by the potential spread of nuclear weapons to extremists who may not be deterred from

using them. Instead of a hostile expansionist empire, we now face a diverse array of challenges, from

a loose network of violent extremists to states that flout international norms or face internal collapse.

In addition to facing enemies on traditional battlefields, the United States must now be prepared for

asymmetric threats, such as those that target our reliance on space and cyberspace.

This Administration has no greater responsibility than protecting the American people. Furthermore,

we embrace Americas unique responsibility to promote international securitya responsibility that

flows from our commitments to allies, our leading role in supporting a just and sustainable international

order, and our unmatched military capabilities.

The United States remains the only nation able to project and sustain large-scale military operations

over extended distances. We maintain superior capabilities to deter and defeat adaptive enemies and


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to ensure the credibility of security partnerships that are fundamental to regional and global security.

In this way, our military continues to underpin our national security and global leadership, and when

we use it appropriately, our security and leadership is reinforced. But when we overuse our military

might, or fail to invest in or deploy complementary tools, or act without partners, then our military is

overstretched, Americans bear a greater burden, and our leadership around the world is too narrowly

identified with military force. And we know that our enemies aim to overextend our Armed Forces and

to drive wedges between us and those who share our interests.

Therefore, we must continue to adapt and rebalance our instruments of statecraft. At home, we are inte-

grating our homeland security efforts seamlessly with other aspects of our national security approach,

and strengthening our preparedness and resilience. Abroad, we are strengthening alliances, forging new

partnerships, and using every tool of American power to advance our objectivesincluding enhanced

diplomatic and development capabilities with the ability both to prevent conflict and to work alongside

our military. We are strengthening international norms to isolate governments that flout them and to

marshal cooperation against nongovernmental actors who endanger our common security.

Strengthen Security and Resilience at Home

At home, the United States is pursuing a strategy capable of meeting the full range of threats and

hazards to our communities. These threats and hazards include terrorism, natural disasters, large-scale

cyber attacks, and pandemics. As we do everything within our power to prevent these dangers, we

also recognize that we will not be able to deter or prevent every single threat. That is why we must also

enhance our resiliencethe ability to adapt to changing conditions and prepare for, withstand, and

rapidly recover from disruption. To keep Americans safe and secure at home, we are working to:

Enhance Security at Home:Security at home relies on our shared efforts to prevent and deter attacks

by identifying and interdicting threats, denying hostile actors the ability to operate within our borders,

protecting the nations critical infrastructure and key resources, and securing cyberspace. That is why

we are pursuing initiatives to protect and reduce vulnerabilities in critical infrastructure, at our borders,

ports, and airports, and to enhance overall air, maritime, transportation, and space and cyber security.

Building on this foundation, we recognize that the global systems that carry people, goods, and data

around the globe also facilitate the movement of dangerous people, goods, and data. Within these

systems of transportation and transaction, there are key nodesfor example, points of origin and

transfer, or border crossingsthat represent opportunities for exploitation and interdiction. Thus, we

are working with partners abroad to confront threats that often begin beyond our borders. And we are

developing lines of coordination at home across Federal, state, local, tribal, territorial, nongovernmental,

and private-sector partners, as well as individuals and communities.

Effectively Manage Emergencies:We are building our capability to prepare for disasters to reduce or

eliminate long-term effects to people and their property from hazards and to respond to and recover

from major incidents. To improve our preparedness, we are integrating domestic all hazards planning

at all levels of government and building key capabilities to respond to emergencies. We continue to

collaborate with communities to ensure preparedness efforts are integrated at all levels of government

with the private and nonprofit sectors. We are investing in operational capabilities and equipment, and


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improving the reliability and interoperability of communications systems for first responders. We are

encouraging domestic regional planning and integrated preparedness programs and will encourage

government at all levels to engage in long-term recovery planning. It is critical that we continually test

and improve plans using exercises that are realistic in scenario and consequences.

Empowering Communities to Counter Radicalization:Several recent incidences of violent extremistsin the United States who are committed to fighting here and abroad have underscored the threat to

the United States and our interests posed by individuals radicalized at home. Our best defenses against

this threat are well informed and equipped families, local communities, and institutions. The Federal

Government will invest in intelligence to understand this threat and expand community engagement

and development programs to empower local communities. And the Federal Government, drawing

on the expertise and resources from all relevant agencies, will clearly communicate our policies and

intentions, listening to local concerns, tailoring policies to address regional concerns, and making clear

that our diversity is part of our strengthnot a source of division or insecurity.

Improve Resilience Through Increased Public-Private Partnerships:When incidents occur, we must show

resilience by maintaining critical operations and functions, returning to our normal life, and learningfrom disasters so that their lessons can be translated into pragmatic changes when necessary. The

private sector, which owns and operates most of the nations critical infrastructure, plays a vital role in

preparing for and recovering from disasters. We must, therefore, strengthen public-private partnerships

by developing incentives for government and the private sector to design structures and systems that

can withstand disruptions and mitigate associated consequences, ensure redundant systems where

necessary to maintain the ability to operate, decentralize critical operations to reduce our vulnerability

to single points of disruption, develop and test continuity plans to ensure the ability to restore critical

capabilities, and invest in improvements and maintenance of existing infrastructure.

Engage with Communities and Citizens:We will emphasize individual and community preparedness

and resilience through frequent engagement that provides clear and reliable risk and emergency

information to the public. A key part of this effort is providing practical steps that all Americans can

take to protect themselves, their families, and their neighbors. This includes transmitting information

through multiple pathways and to those with special needs. In addition, we support efforts to develop

a nationwide public safety broadband network. Our efforts to inform and empower Americans and their

communities recognize that resilience has always been at the heart of the American spirit.

Disrupt, Dismantle, and Defeat Al-Qaida and its Violent Extremist Affiliates inAfghanistan, Pakistan, and Around the World

The United States is waging a global campaign against al-Qaida and its terrorist affiliates. To disrupt,

dismantle and defeat al-Qaida and its affiliates, we are pursuing a strategy that protects our homeland,

secures the worlds most dangerous weapons and material, denies al-Qaida safe haven, and builds

positive partnerships with Muslim communities around the world. Success requires a broad, sustained,

and integrated campaign that judiciously applies every tool of American powerboth military and

civilianas well as the concerted efforts of like-minded states and multilateral institutions.


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We will always seek to delegitimize the use of terrorism and to isolate those who carry it out. Yet this is

not a global war against a tacticterrorism or a religionIslam. We are at war with a specific network,

al-Qaida, and its terrorist affiliates who support efforts to attack the United States, our allies, and partners.

Prevent Attacks on and in the Homeland:To prevent acts of terrorism on American soil, we must enlist

all of our intelligence, law enforcement, and homeland security capabilities. We will continue to inte-grate and leverage state and major urban area fusion centers that have the capability to share classified

information; establish a nationwide framework for reporting suspicious activity; and implement an

integrated approach to our counterterrorism information systems to ensure that the analysts, agents,

and officers who protect us have access to all relevant intelligence throughout the government. We

are improving information sharing and cooperation by linking networks to facilitate Federal, state, and

local capabilities to seamlessly exchange messages and information, conduct searches, and collaborate.

We are coordinating better with foreign partners to identify, track, limit access to funding, and prevent

terrorist travel. Recognizing the inextricable link between domestic and transnational security, we will

collaborate bilaterally, regionally, and through international institutions to promote global efforts to

prevent terrorist attacks.Strengthen Aviation Security: We know that the aviation system has been a particular target of al-Qaida

and its affiliates. We must continue to bolster aviation security worldwide through a focus on increased

information collection and sharing, stronger passenger vetting and screening measures, the develop-

ment and development of advanced screening technologies, and cooperation with the international

community to strengthen aviation security standards and efforts around the world.

Deny Terrorists Weapons of Mass Destruction:To prevent acts of terrorism with the worlds most danger-

ous weapons, we are dramatically accelerating and intensifying efforts to secure all vulnerable nuclear

materials by the end of 2013, and to prevent the spread of nuclear weapons. We will also take actions

to safeguard knowledge and capabilities in the life and chemical sciences that could be vulnerable to

misuse.

Deny Al-Qaida the Ability to Threaten the American People, Our Allies, Our Partners and Our Interests

Overseas:Al-Qaida and its allies must not be permitted to gain or retain any capacity to plan and launch

international terrorist attacks, especially against the U.S. homeland. Al Qaidas core in Pakistan remains

the most dangerous component of the larger network, but we also face a growing threat from the

groups allies worldwide. We must deny these groups the ability to conduct operational plotting from

any locale, or to recruit, train, and position operatives, including those from Europe and North America.

Afghanistan and Pakistan:This is the epicenter of the violent extremism practiced by al Qaida. The

danger from this region will only grow if its security slides backward, the Taliban controls large swaths of

Afghanistan, and al-Qaida is allowed to operate with impunity. To prevent future attacks on the UnitedStates, our allies, and partners, we must work with others to keep the pressure on al-Qaida and increase

the security and capacity of our partners in this region.

In Afghanistan, we must deny al-Qaida a safe haven, deny the Taliban the ability to overthrow the gov-

ernment, and strengthen the capacity of Afghanistans security forces and government so that they can

take lead responsibility for Afghanistans future. Within Pakistan, we are working with the government

to address the local, regional, and global threat from violent extremists.


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We will achieve these objectives with a strategy comprised of three components.

First, our military and International Security Assistance Force (ISAF) partners within Afghanistan

are targeting the insurgency, working to secure key population centers, and increasing efforts

to train Afghan security forces. These military resources will allow us to create the conditions to

transition to Afghan responsibility. In July 2011, we will begin reducing our troops responsibly,taking into account conditions on the ground. We will continue to advise and assist Afghanistans

Security Forces so that they can succeed over the long term.

Second, we will continue to work with our partners, the United Nations, and the Afghan

Government to improve accountable and effective governance. As we work to advance our

strategic partnership with the Afghan Government, we are focusing assistance on supporting

the President of Afghanistan and those ministries, governors, and local leaders who combat

corruption and deliver for the people. Our efforts will be based upon performance, and we will

measure progress. We will also target our assistance to areas that can make an immediate and

enduring impact in the lives of the Afghan people, such as agriculture, while supporting the

human rights of all of Afghanistans peoplewomen and men. This will support our long-termcommitment to a relationship between our two countries that supports a strong, stable, and

prosperous Afghanistan.

Third, we will foster a relationship with Pakistan founded upon mutual interests and mutual

respect. To defeat violent extremists who threaten both of our countries, we will strengthen

Pakistans capacity to target violent extremists within its borders, and continue to provide

security assistance to support those efforts. To strengthen Pakistans democracy and develop-

ment, we will provide substantial assistance responsive to the needs of the Pakistani people,

and sustain a long-term partnership committed to Pakistans future. The strategic partnership

that we are developing with Pakistan includes deepening cooperation in a broad range of

areas, addressing both security and civilian challenges, and we will continue to expand those

ties through our engagement with Pakistan in the years to come.

Deny Safe Havens and Strengthen At-Risk States:Wherever al-Qaida or its terrorist affiliates attempt

to establish a safe havenas they have in Yemen, Somalia, the Maghreb, and the Sahelwe will meet

them with growing pressure. We also will strengthen our own network of partners to disable al-Qaidas

financial, human, and planning networks; disrupt terrorist operations before they mature; and address

potential safe-havens before al-Qaida and its terrorist affiliates can take root. These efforts will focus on

information-sharing, law enforcement cooperation, and establishing new practices to counter evolving

adversaries. We will also help states avoid becoming terrorist safe havens by helping them build their

capacity for responsible governance and security through development and security sector assistance.

Deliver Swift and Sure Justice:To effectively detain, interrogate, and prosecute terrorists, we need

durable legal approaches consistent with our security and our values. We adhere to several principles:

we will leverage all available information and intelligence to disrupt attacks and dismantle al-Qaida and

affiliated terrorist organizations; we will bring terrorists to justice; we will act in line with the rule of law

and due process; we will submit decisions to checks and balances and accountability; and we will insist

that matters of detention and secrecy are addressed in a manner consistent with our Constitution and


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laws. To deny violent extremists one of their most potent recruitment tools, we will close the prison at

Guantanamo Bay.

Resist Fear and Overreaction:The goal of those who perpetrate terrorist attacks is in part to sow fear. If we

respond with fear, we allow violent extremists to succeed far beyond the initial impact of their attacks, or

attempted attacksaltering our society and enlarging the standing of al-Qaida and its terrorist affiliatesfar beyond its actual reach. Similarly, overreacting in a way that creates fissures between America and

certain regions or religions will undercut our leadership and make us less safe.

Contrast Al-Qaidas Intent to Destroy with Our Constructive Vision: While violent extremists seek to

destroy, we will make clear our intent to build. We are striving to build bridges among people of different

faiths and regions. We will continue to work to resolve the Arab-Israeli conflict, which has long been a

source of tension. We will continue to stand up for the universal rights of all people, even for those with

whom we disagree. We are developing new partnerships in Muslim communities around the world on

behalf of health, education, science, employment, and innovation. And through our broader emphasis

on Muslim engagement, we will communicate our commitment to support the aspirations of all people

for security and opportunity. Finally, we reject the notion that al-Qaida represents any religious author-ity. They are not religious leaders, they are killers; and neither Islam nor any other religion condones the

slaughter of innocents.

Use of Force

Military force, at times, may be necessary to defend our country and allies or to preserve broader peace

and security, including by protecting civilians facing a grave humanitarian crisis. We will draw on diplo-

macy, development, and international norms and institutions to help resolve disagreements, prevent

conflict, and maintain peace, mitigating where possible the need for the use of force. This means credibly

underwriting U.S. defense commitments with tailored approaches to deterrence and ensuring the U.S.military continues to have the necessary capabilities across all domainsland, air, sea, space, and cyber. It

also includes helping our allies and partners build capacity to fulfill their responsibilities to contribute to

regional and global security.

While the use of force is sometimes necessary, we will exhaust other options before war whenever we can,

and carefully weigh the costs and risks of action against the costs and risks of inaction. When force is neces-

sary, we will continue to do so in a way that reflects our values and strengthens our legitimacy, and we will

seek broad international support, working with such institutions as NATO and the U.N. Security Council.

The United States must reserve the right to act unilaterally if necessary to defend our nation and our inter-

ests, yet we will also seek to adhere to standards that govern the use of force. Doing so strengthens those

who act in line with international standards, while isolating and weakening those who do not. We will alsooutline a clear mandate and specific objectives and thoroughly consider the consequences intended

and unintendedof our actions. And the United States will take care when sending the men and women

of our Armed Forces into harms way to ensure they have the leadership, training, and equipment they

require to accomplish their mission.


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Reverse the Spread of Nuclear and Biological Weapons and Secure NuclearMaterials

The American people face no greater or more urgent danger than a terrorist attack with a nuclear

weapon. And international peace and security is threatened by proliferation that could lead to a nuclear

exchange. Indeed, since the end of the Cold War, the risk of a nuclear attack has increased. ExcessiveCold War stockpiles remain. More nations have acquired nuclear weapons. Testing has continued. Black

markets trade in nuclear secrets and materials. Terrorists are determined to buy, build, or steal a nuclear

weapon. Our efforts to contain these dangers are centered in a global nonproliferation regime that has

frayed as more people and nations break the rules.

That is why reversing the spread of nuclear weapons is a top priority. Success depends upon broad

consensus and concerted action, we will move forward strategically on a number of fronts through our

example, our partnerships, and a reinvigorated international regime. The United States will:

Pursue the Goal of a World Without Nuclear Weapons:While this goal will not be reached during this

Administration, its active pursuit and eventual achievement will increase global security, keep ourcommitment under the NPT, build our cooperation with Russia and other states, and increase our cred-

ibility to hold others accountable for their obligations. As long as any nuclear weapons exist, the United

States will sustain a safe, secure, and effective nuclear arsenal, both to deter potential adversaries and

to assure U.S. allies and other security partners that they can count on Americas security commitments.

But we have signed and seek to ratify a landmark New START Treaty with Russia to substantially limit our

deployed nuclear warheads and strategic delivery vehicles, while assuring a comprehensive monitoring

regime. We are reducing the role of nuclear weapons in our national security approach, extending a

negative security assurance not to use or threaten to use nuclear weapons against those nonnuclear

nations that are in compliance with the NPT and their nuclear nonproliferation obligations, and investing

in the modernization of a safe, secure, and effective stockpile without the production of new nuclear

weapons. We will pursue ratification of the Comprehensive Test Ban Treaty. And we will seek a new treaty

that verifiably ends the production of fissile materials intended for use in nuclear weapons.

Strengthen the Nuclear Non-Proliferation Treaty:The basic bargain of the NPT is sound: countries with

nuclear weapons will move toward disarmament; countries without nuclear weapons will forsake

them; and all countries can access peaceful nuclear energy. To strengthen the NPT, we will seek more

resources and authority for international inspections. We will develop a new framework for civil nuclear

cooperation. As members of the Global Nuclear Energy Partnership have agreed, one important ele-

ment of an enhanced framework could be cradle-to-grave nuclear fuel management. We will pursue a

broad, international consensus to insist that all nations meet their obligations. And we will also pursue

meaningful consequences for countries that fail to meet their obligations under the NPT or to meet therequirements for withdrawing from it.

Present a Clear Choice to Iran and North Korea:The United States will pursue the denuclearization of the

Korean peninsula and work to prevent Iran from developing a nuclear weapon. This is not about singling

out nationsit is about the responsibilities of all nations and the success of the nonproliferation regime.

Both nations face a clear choice. If North Korea eliminates its nuclear weapons program, and Iran meets

its international obligations on its nuclear program, they will be able to proceed on a path to greater


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political and economic integration with the international community. If they ignore their international

obligations, we will pursue multiple means to increase their isolation and bring them into compliance

with international nonproliferation norms.

Secure Vulnerable Nuclear Weapons and Material:The Global Nuclear Security Summit of 2010 rallied 47

nations behind the goal of securing all nuclear materials from terrorist groups. By the end of 2013, wewill seek to complete a focused international effort to secure all vulnerable nuclear material around the

world through enhanced protection and accounting practices, expanded cooperation with and through

international institutions, and new partnerships to lock down these sensitive materials. To detect and

intercept nuclear materials in transit, and to stop the illicit trade in these technologies, we will work to

turn programs such as the Proliferation Security Initiative and the Global Initiative to Combat Nuclear

Terrorism into durable international efforts. And we will sustain broad-based cooperation with other

nations and international institutions to ensure the continued improvements necessary to protect

nuclear materials from evolving threats.

Support Peaceful Nuclear Energy:As countries move increasingly to tap peaceful nuclear energy to

provide power generation while advancing climate goals, the world must develop an infrastructurein the countries that seek to use nuclear energy for their energy security needs and climate goals to

ensure that nuclear energy is developed in a safer manner. We will do so by promoting safety through

regulatory bodies and training of operators, promoting physical security to prevent terrorist acts, and

assuring safe and secure handling of fuel at the front and back ends of the nuclear fuel cycle.

Counter Biological Threats:The effective dissemination of a lethal biological agent within a population

center would endanger the lives of hundreds of thousands of people and have unprecedented eco-

nomic, societal, and political consequences. We must continue to work at home with first responders

and health officials to reduce the risk associated with unintentional or deliberate outbreaks of infectious

disease and to strengthen our resilience across the spectrum of high-consequence biological threats.

We will work with domestic and international partners to protect against biological threats by promot-

ing global health security and reinforcing norms of safe and responsible conduct; obtaining timely

and accurate insight on current and emerging risks; taking reasonable steps to reduce the potential

for exploitation; expanding our capability to prevent, attribute, and apprehend those who carry out

attacks; communicating effectively with all stakeholders; and helping to transform the international

dialogue on biological threats.

Advance Peace, Security, and Opportunity in the Greater Middle East

The United States has important interests in the greater Middle East. They include broad cooperation on

a wide range of issues with our close friend, Israel, and an unshakable commitment to its security; the

achievement of the Palestinian peoples legitimate aspirations for statehood, opportunity, and the real-

ization of their extraordinary potential; the unity and security of Iraq and the fostering of its democracy

and reintegration into the region; the transformation of Iranian policy away from its pursuit of nuclear

weapons, support for terrorism, and threats against its neighbors; nonproliferation; and counterterrorism

cooperation, access to energy, and integration of the region into global markets.


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At the same time, our engagement must be both comprehensive and strategic. It should extend beyond

near-term threats by appealing to peoples aspirations for justice, education, and opportunity and by

pursuing a positive and sustainable vision of U.S. partnership with the region. Furthermore, our relation-

ship with our Israeli and Arab friends and partners in the region extends beyond our commitment to its

security and includes the continued ties we share in areas such as trade, exchanges, and cooperation

on a broad range of issues.

Complete a Responsible Transition as We End the War in Iraq:The war in Iraq presents a distinct and

important challenge to the

Documents

US National Security Strategy May 2010